Mission

It is our mission to serve the Council and citizens of Hawaiʻi County by promoting accountability, fiscal integrity, and openness in local government. Through performance and/or financial audits of County agencies and programs, the Office of the County Auditor examines the use of public funds, evaluates operations and activities, and provides findings and recommendations to elected officials and citizens in an objective manner. Our work is intended to assist County government in its management of public resources, delivery of public services, and stewardship of public trust.

Audit Authority

Hawaiʻi County Charter §3-18 establishes an independent audit function within the Legislative Branch through the Office of the County Auditor (OCA).

Purpose

The purpose of this audit is to determine if services are being provided effectively, efficiently, economically, and complies with relevant governance.

Performance Audit Definition

Performance audits provide objective analysis, findings, and conclusions to assist management and those charged with governance and oversight with, among other things, improving program performance and operations, reducing costs, facilitating decision-making by parties responsible for overseeing or initiating corrective action, and contributing to public accountability.

Objective
1. What is the efficiency and effectiveness of service delivery within the Hawaiʻi County Police Department, focusing on response times, crime locations, officer deployment, resource utilization, overall customer satisfaction, and how do results improve public safety outcomes?

2. How effectively have the mental health initiatives been implemented within the Hawaiʻi County Police Department, and how does their impact enhance the well-being and safety of department employees? This includes examining the coordination of resources, collaboration with community partners, and effectiveness of intervention strategies specifically focused on supporting employee mental health.

3. How do the training programs and practices in the Hawaiʻi County Police Department align with industry best practices, and how are they effectively enhancing officer performance and safety? What opportunities for continuous improvement can be identified to ensure the highest professional standards and accountability? 

Scope
The audit was conducted from September to March 2024.
     • Calls for Service Data: January 1, 2019, to September 30, 2023, to identify trends and patterns in service demand.

     • Policies and Procedures: Applicable Commission on Accreditation for Law Enforcement Agencies (CALEA) and Hawaiʻi County Police Department policies and procedures to ensure alignment with industry standards.

     • Clearance Rate Materials: January 1, 2018, to December 31, 2020, to assess the department's effectiveness in resolving cases.

     • Budget Allocations and Expenditures: Budget allocations and expenditure data for Fiscal Years 2018-2019 to 2022-2023 in FRESH, the County’s accounting system, to assess financial management practices.

     • Service Delivery Efficiency and Effectiveness: Assessment of service delivery processes within HPD to determine efficiency in resource utilization and meeting community needs.

     •  Mental Health Initiatives: Evaluation of mental health initiatives within HPD to address the needs of individuals experiencing mental health crises.

     • Training Programs and Practices: Document training programs and practices within HPD to ensure officers receive adequate training and professional development opportunities.

     • The audit did not evaluate the Communications Dispatch, Criminal Investigation, VICE, or Juvenile Aid Sections of the Hawaiʻi County Police Department.

Methodology
To accomplish our objectives, we:

Data Analysis and Research:
• Analyzed call for service data from January 1, 2019, to September 30, 2023
• Analyzed clearance rate materials from January 1, 2018, to December 31, 2020
• Benchmarked relevant FBI crime statistics
• Analyzed budget-to-actual expenditures for variance
• Analyzed Laserfiche materials related to the execution of duties

Compliance and Standards Assessment:
• Assessed compliance with applicable CALEA standards
• Reviewed SHOPO 2021-2025 Collective Bargaining Agreements
• Reviewed the 2022 Hawaiʻi County Charter, as amended
• Reviewed applicable Police Commission’s Annual Reports
• Reviewed applicable Law Enforcement Standards Board materials
• Reviewed applicable General Orders

Community Engagement and Interviews:
• Participated in community policing ride-alongs
• Interviewed Police Commission Chair
• Interviewed the HPD Chaplain
• Interviewed the Training Division
• Interviewed the City of Bend Oregon Police Department
• Reviewed materials related to the nonprofit organization "Friends of First Responders"
• Reviewed HPD’ Community Satisfaction Surveys

Program Benchmarking and Miscellaneous:
• Gained an understanding of the Department of Justice, Law Enforcement Mental Health and Wellness Act (LEMHWA)
• Benchmarked active programs administered by other agencies
• Other activities as required  

We conducted this performance audit in accordance with generally accepted government auditing standards. Those standards require that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objectives. We believe the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objective. 

Why we selected HPD for this review
OCA’s annual risk assessment highlighted the department's inherent risks associated with intricate and sensitive operations. The assessment considered the severity and impact of potential adverse outcomes and the likelihood of such events. These factors underscored the critical nature of the department's functions and the importance of ensuring robust and effective operational protocols. HPD expressed specific concerns related to the following: 
• Performance - Appropriately distributing personnel in sufficient quantity is vital for meeting community safety expectations. This ensures that resources are effectively allocated to areas of greatest need, enhancing the department's ability to respond swiftly and efficiently to emergencies. Strategic deployment maintains public trust and ensures a safe, secure community environment, and  it is a Hawaiʻi County Charter Section 7-2.4(a)  requirement.

• Mental Health – As mental health initiatives are still emerging in police operations, there is a notable lack of established guidance or authority. It is, however, well understood that, in general, overall well-being and job effectiveness are inextricably intertwined. Attention to the field is becoming more mainstream with the passage of the Law Enforcement Mental Health and Wellness Act of 2017  and subsequent reporting to Congress based on related research. 

• Training – Hawaiʻi County Charter Section 7-2.4(b) requires that through the administrative head (Police Chief), the police department shall “train, equip, maintain, and supervise the force of police officers and employees.  CALEA Chapter 33  establishes additional requirements to meet and maintain standards.

Hawaiʻi County Police (HPD) Department Primary Functions
As established under Hawaiʻi County Charter Section 7-2.4, the police chief shall be the administrative head of the police department and shall:
(a) Be tasked with preserving public peace, preventing crime, detecting and arresting law offenders, protecting the rights of persons and property, and enforcing and preventing violations of all state laws and county ordinances, along with any related regulations.
(b) Train, equip, maintain, and supervise its police officers and employees.
(c) Develop and implement rules and regulations for the organization and administration of the police force.
(d) Provide periodic reports to the police commission regarding the department's activities and the actions taken on cases investigated by the police commission.
(e) Undertake any additional powers, duties, and functions as directed by the Police Commission or as required by law. 

HPD’s Mission, Vision, and Core Values
Mission Statement: The employees of the Hawaiʻi Police Department are committed to preserving the Spirit of Aloha. We will work cooperatively with the community to enforce the laws, preserve peace, and provide a safe environment.

Vision Statement: The Hawaiʻi Police Department is committed to providing the highest quality of police service and forming partnerships with the community to achieve public satisfaction, making the Big Island a safe place to live, visit, and conduct business.

Core Values
• Integrity
• Professionalism
• Compassion
• Teamwork
• Community Satisfaction 

Police Stations
HPD uses eight stations arranged around Hawaiʻi 
Island as illustrated below: 
• Honoka'a Station
• Laupāhoehoe Station
• Hilo Station
• Pāhoa Station
• Nā'ālehu Station
• Kona Station
• Waimea Station
• Kapa'au Station

In addition, HPD utilizes satellite locations. 
These locations are typically unoccupied, used for paperwork, and not promoted for walk-in use.

Coverage Area
HPD provides coverage for an extraordinary area of approximately 4,028 square miles. HPD segments geographical areas into sections called beats. A police beat is a designated area or patrol route within a jurisdiction that officers regularly monitor and patrol to maintain law and order, respond to incidents, and engage with the community. 

 

Beat areas are described in General Order (GO) 204, District and Beat Boundaries - delineates police beats, encompassing foot patrols, motorcycle beats, and motor patrol beats across districts. Directional indicators, cross streets, or geographical landmarks define beat boundaries. In addition to the beats specified in the GO, specific events, such as traffic safety efforts during the Mauna Loa eruption of 2023 and COVID-19, may be included as part of a 'project beat' or temporary beats. Consequently, our report documents calls associated with approximately 102 beats. 

Organization Structure
Below is an overview of the department's organizational structure, including its reporting lines, staffing distribution, and key positions.

Organization
Section 7-2.1 of the Hawaiʻi County Charter states, "There shall be a police department consisting of a Police Commission, a Chief of Police, a Deputy Chief of Police, and the necessary staff.

Police Commission: Hawaiʻi County Charter Section 7-2.2. establishes a Police Commission. Nine Hawaiʻi Island residents serve on the Hawaiʻi County Police Commission. The mayor appoints one member from each council district subject to confirmation by the Hawaiʻi County Council. The Police Commission’s responsibilities include appointing the Chief of Police, reviewing the police department’s budget, advising the Chief on police-community relations, and considering and investigating misconduct charges by the Police Department or its members.

Police Chief: Hawaiʻi County Charter Section 7-2.4 establishes that the Chief of Police oversees the planning, assignment, and execution of police activities, manages investigations and subordinates, and maintains departmental records. They exercise judgment in daily operations, formulate policies, plan the department's budget, and design crime prevention programs. As the highest-ranking official in a police department's chain of command, they hold responsibility for all operations across every division and unit.

Administrative Bureau:

 Police Commission

• South Hilo Patrol
• Hāmākua/North Hilo Patrol
• Puna Patrol
• Traffic Enforcement Unit
• Community Policing
• Community Policing Officers
• School Resource Officer
• DARE
• HI-PAL

• Area II Operations Bureau
  • Area II Criminal Investigation Division

• Criminal Investigation Section
• Vice Section
• Juvenile Aid Section

• Kona Patrol
• South Kohala District
• North Kohala District
• Kaʻū District
• Community Policing
  • Community Policing Officers
  • School Resource Officer
  • DARE
  • HI-PAL

Services Overview:
     1. Core Services:
          • Active Shooter/Violence Awareness
          • Animal Control (a new agency established July 1, 2023)
          • Crime Prevention and Drug Safety
          • Coroner/Medical Examiner
          • Domestic Violence Services
          • Firearm Services
          • Police Reports
          • Terrorism Awareness

2. Community Engagement:
          • Community Policing
          • Community Satisfaction Surveys
          • Drug Take Back Program
          • Gated Communities
          • HI-Pal
          • Neighborhood Watch
          • Station Tours, Speaker Bureau
          • TV Interviews, Website Posts

HPD's array of services reflects a deep understanding of the community's various needs.

 

Noteworthy Achievements

CALEA Accreditation
The Hawaiʻi County Police Department has achieved its fourth consecutive CALEA accreditation for Advanced Law Enforcement. This milestone reflects the department's adherence to over 400 CALEA standards, achieved through effective policy management and ongoing revisions. 

HPD’s Accreditation Section, comprising a Police Lieutenant who serves as the Accreditation Manager, two Police Sergeants, and a Clerk III, is responsible for aligning policies with CALEA's standards, managing compliance files, and conducting the necessary assessment processes. These processes include annual web-based assessments and an extensive on-site assessment every four years.

The department focuses on maintaining compliance with best practices and meeting community expectations. Staff training and development are facilitated through participation in CALEA conferences and the use of PowerDMS software, which assists in managing compliance files and policy databases.

Transparency and Accountability
Maintaining CALEA certification offers several benefits to the public, one of which is the adherence to standards for reviewing Use-of-Force incidents, as outlined in CALEA standard 4.2.4. This standard discusses Use-of-Force Analysis, compiled by the special response unit and submitted to the Chief annually. The most recent report from 2022 included a suggestion to make this information accessible online.

Similarly, at the end of every year, HPD submits a misconduct report  to the Hawaiʻi State Legislature. Misconduct and attendant disciplinary reports reflect the status submitted to the Hawaii State Legislature at the time. Results, in part or their entirety, may be subject to Grievances and Appeals set forth by the Collective Bargaining Agreement governing the accused employees.

_{Hawaii Police Department Annual Miscount Report. https://www.hawaiipolice.com/about-us/annual-misconduct-report Date accessed 1-3-2024}

 

Proactive Policing Overview 

Community Policing Mission 

To form a partnership with the community in order to create a safe and secure environment.

Community Outreach Initiatives

Community police officers foster community collaborations to establish a safe and secure atmosphere. This goal involves community engagement, initiatives to prevent crime, and addressing specific issues, such as presenting to Neighborhood Watch and Citizen Patrol programs.

Neighborhood Watch Program

The Neighborhood Watch Program is a community-based initiative to enhance neighborhood security by encouraging collaboration between residents and local law enforcement. The program revolves around residents actively observing and reporting suspicious activities in their neighborhoods, effectively acting as additional eyes and ears for the police.

Participants in Neighborhood Watch typically organize meetings, often with police representatives, to discuss safety concerns, crime prevention strategies, and ways to maintain vigilance in their area. These meetings also serve as a platform for building stronger community ties and enhancing communication between neighbors and law enforcement.

 

Public Input and Feedback
Every two years, HPD hosts a Community Satisfaction Survey . The survey results indicate a mixed trend in perceptions of safety and satisfaction with the Hawaiʻi Police Department from 2013 to 2023.

While there's a decline in the percentage of respondents who strongly agree that the island is a safe place to live, work, or visit, the combined percentage of those who agree or strongly agree generally remains stable or shows a slight increase by 2023. In 2023, 11.9% of respondents strongly agree, slightly less than the 12.67% in 2021 but higher than the 7.82% in 2019. The percentage of those who agree in 2023 is 47.14%, showing a consistent increase from 45.84% in 2021 and 42.27% in 2019. See Attachment 2 for detailed survey results.

Contacts with police officers are mostly perceived positively, with an increase in the percentage of respondents who strongly agree that officers demonstrated professionalism and integrity and expressed interest in helping. The survey results for 2023 reinforces this positive trend.

Satisfaction with civilian police employees also shows a positive trend through 2023, with some fluctuations in specific aspects like professionalism and compassion.

Participation in satisfaction surveys was relatively flat between 2013, 2016, and 2019. However, we note that beginning in 2021, HPD has successfully increased community engagement in the surveys. Between 2019 and 2021, participation nearly doubled from 563 participants to 1,034. Between 2021 and 2023, numbers increased again from 1,034 to 1,572, or an additional 52% increase. We commend HPD in its effort to continually improve outreach and incorporate vital public feedback into its strategic planning.

Conclusions
The HPD’s initiatives align with modern community engagement strategies and are consistent with industry peers, designed to foster safer communities through collaboration and communication. However, it is important to recognize that the presence of these programs alone does not automatically equate to their success or efficacy. The nature of community needs and challenges necessitates continuous review, assessment, and adaptation of programs to ensure they deliver tangible benefits and meet the evolving expectations of the community. Regular evaluation, coupled with the willingness to make necessary adjustments, is fundamental to maintaining their relevance and effectiveness in contributing to public safety and trust.

Performance and Community Expectations

Audit Activity
To verify this section, we conducted the following activities:

     • Analyzed call for service data from January 1, 2019, to September 30, 2023, from CAD
     • Reviewed Attorney General 2020 Uniform Crime Reporting Reports
     • Benchmarked applicable FBI crime statistics
     • Assessed compliance with applicable CALEA standards
     • Participated in two community policing ride-alongs
     • Other activities as required
     • Note: A dashboard supporting geographical data and expenditures is available to the public at: _{https://www.hawaiicounty.gov/our-county/legislative/office-of-the-county-auditor/audit-reports}

Performance and Community Expectations
Our first objective was to determine “What is the efficiency and effectiveness of service delivery within the Hawaiʻi County Police Department, focusing on response times, crime locations, officer deployment, resource utilization, and overall customer satisfaction, and how do results improve public safety outcomes?” Our analysis focused on the activities of patrol and community policing. The audit did not review Communications Dispatch, Criminal Investigation Division (CID), VICE, Juvenile Aid, or other ancillary divisions.

Evaluation of HPD’s Performance
Standard 40.1.1 of the CALEA Law Enforcement Standards, titled "Crime Analysis Procedures," mandates that law enforcement agencies establish written directives for crime analysis, covering several key aspects:

     1. Identification of Data Sources: Agencies must specify sources for crime analysis data.
     2. Data Evaluation: The data and findings are evaluated for accuracy.
     3. Dissemination of Findings: Analysis findings should be disseminated appropriately.
     4. Briefing the CEO: The Chief Executive Officer must be briefed on crime patterns or trends.

This standard emphasizes collecting, evaluating, and analyzing crime data to develop actionable intelligence. It suggests using various analytical tools to identify and interpret criminal activity and trends. The standard also highlights the need to effectively disseminate information to relevant units for operational and tactical planning and strategic development at the agency level. 

Beat Analysis
Results were derived through a police beat analysis of the Hawaiʻi County Police Department, assessing their performance on several variables in a calls-for-service dataset between January 1, 2019, to September 30, 2023, and other relevant data. A police beat is a designated area or patrol route within a jurisdiction that officers regularly monitor and patrol to maintain law and order, respond to incidents, and engage with the community.

To augment visualization of the following datapoints, the Office of the County Auditor has created a dashboard available to the public. The information detailed in this report can be accessed on the dashboard at: 

_{https://www.hawaiicounty.gov/our-county/legislative/office-of-the-county-auditor/audit-reports}

We determined that the highest volume of calls is the most critical factor to consider when evaluating demand or resource allocation. This is because a higher volume of calls typically reflects an increased need for services in the community. It directly impacts emergency services' operational capacity, response times, and resource management. As the demand for assistance grows, it becomes crucial to understand and address these changing needs to ensure timely and efficient responses.

 

1. Island-Wide Incident Location
Our review found call volume significantly increased in 2021, with a baseline increase of approximately 13,058 calls after the COVID-19 pandemic. Instead of an expected annual increase, 2022 saw a negligible decrease of 37 calls from 2021. The estimated number of calls by the end of 2023 suggests a moderate increase of approximately 2,854 calls from 2022.

 

2. Incident Types
The frequency of Priority 1 calls in a beat is an important indicator of potential danger for officers and victims. A high ratio of Priority 1 calls suggests that officers frequently encounter high-risk situations. Conversely, excessive time spent on lower Priority 2 calls, such as public disturbances, can impede officer readiness for urgent situations. Therefore, connecting high utilizers of public safety services, especially within vulnerable groups, to supportive social services is important to reduce the strain on police resources, focusing on dignity and societal integration for these individuals. 

 

Priority 1
• Includes violent crimes such as murder, assault, robbery
• Involves immediate threats to life, safety, and property

Priority 2
• Involves property crimes like theft and burglary
• Generally, less severe or does not involve immediate threats to life, safety, and property

3. Response Time to Critical Calls
Because of large coverage areas, difficult-to-access geography or roads in some areas, and staffing shortages, HPD deals with long response times for most of its calls. HPD prioritizes Priority 1 calls, and response times reflect this. The following table reflects the highest number of Priority 1 calls with a response time greater than 30 min. This table calculates Response Time as the average time between “When reported” and the “First Arrived Time” on scene.

 

Other Notable Response Time Attributes
The average response time between January 2019 to September 2023 is 00:25:59, with single-year ranges from 00:23:45 in 2021 to 00:30:21 in 2020.

Response times vary by Beat from as low as 00:13:26 (138, Hilo, Wong Stadium) to as high as 00:57:07 (838, Kalapana)*.
*Auditor Note - Data outliers omitted from response times analysis.

4. Time-Series 
Calls by Hour
Early Morning Rise (5:00 – 9:00 AM): Call volume increases around 5:00 AM, reaching its peak at 9:00 AM. This increase could be attributed to the start of the daily activities of residents and businesses, leading to more incidents requiring police attention.

Daytime Plateau (9:00 – 4:00 PM): From 9:00 AM, the call volume remains relatively consistent until about 4:00 PM. The consistency during these hours might be due to regular daytime activities and traffic, which maintain a steady level of incidents.

Evening Decline (4:00 – 11:00 PM): There is a linear decline in call volume from 4:00 PM until 11:00 PM. This decline could correspond with the end of the typical workday and reduced business activities, leading to fewer incidents.

Late Night Surge (11:00 – 12:30 AM): At 11:00 PM, calls increase until around 12:30 AM. This surge might be related to nightlife activities, such as bars and restaurants closing, which can lead to a temporary spike in incidents.

Overnight Decrease (12:30 – 5:00 AM): After 12:30 AM, there is a steady decline in call volume until it reaches its lowest point at 5:00 AM. The overnight hours are typically quieter, with fewer people and businesses active, resulting in fewer incidents and, thus, fewer calls.

The graph below illustrates that over time (January 2019 - September 2023), the call for service demand is outpacing the number of officers available to respond. The trend line for calls for service indicates a slight increase in service demand, while the Officer count trend line is slightly declining, indicating an uncoupling.

Crime Reporting and Clearance Rates
Nationally, law enforcement's approach to crime reporting has undergone significant changes. Traditionally, departments have submitted crime data to the Federal Bureau of Investigation (FBI) using the Uniform Crime Report (UCR) format. The UCR system focuses on Part I offenses, which are divided into two categories: violent crimes (such as murder, rape, robbery, and aggravated assault) and property crimes (such as burglary, larceny-theft, motor vehicle theft, and arson). This program compiles data on the occurrence of these crimes as reported to law enforcement and the associated arrests. However, the UCR's summary reporting method, which records only the most severe offense in a criminal incident, has faced criticism for potentially underrepresenting the full extent of criminal activity.

In response to these limitations, the National Incident-Based Reporting System (NIBRS) was developed to offer a more detailed and comprehensive perspective on crime in the United States. NIBRS gathers data on each incident and arrest within numerous elements and offense categories (Group A offenses) and also includes Group B offenses, for which only arrest data are reported. NIBRS aims to improve the quality, quantity, and timeliness of the crime data collected by law enforcement, providing a fuller picture of crime incidents.

HPD began NIBRS reporting in 2022. This adoption is significant because, in the short term, crime statistics reported by the FBI may indicate a spike in crime in Hawaiʻi County. However, this perceived increase reflects a more thorough reporting of the range of crimes associated with particular incidents. Both the UCR and NIBRS systems are managed by the Federal Bureau of Investigation.

The shift from UCR to NIBRS in crime reporting is important when discussing clearance rates, which measure how well police solve crimes. Once mature datasets emerge with NIBRS providing a clearer picture of crime, police can use this information to solve more cases.

Clearance
Although definitions can vary, clearance rates tend to represent the percentage of reported crimes that have been solved or "cleared" by law enforcement agencies. Calls are typically cleared for one of two reasons, either by arrest or by exceptional means.

Arrest
This reason applies if at least one person has met one of the following conditions:
     • Arrested
     • Charged with a crime
     • Turned over to the court for prosecution

Exceptional means
This reason applies only if the following four conditions are met.
      • The offender is identified.
    • Sufficient and appropriate evidence exists to support an arrest, make a charge, and turn over evidence to the court for prosecution.
      • The offender is located and will be taken into custody immediately.
    • A circumstance beyond the department's control prevents a successful arrest, charging, and prosecution of the offender. Examples include an inability to extradite, suicide, victim refusal to cooperate, etc. 

We utilized data provided by HPD to the Office of the Attorney General and published as Review of Uniform Crime Reports, November 2021. We compared the results to national 2019 UCR data as published by the FBI to compare HPD results against national averages:

Separately, in HPD’s Operations Bureau Six-Month Progress Report on Program Objectives for FY 2022-23’, the department set goals and reported actual clearance for specific crime types, including:

Based on what HPD reported, actual performance represents a marked improvement over time compared to prior periods. We commend HPD on their improved clearance rates.

Beat Analysis Conclusions

The Hawaiʻi County Police Department (HPD) presents a nuanced and evolving picture of law enforcement, balancing proactive measures with notable challenges. HPD’s accreditation and subsequent recertifications, adoption of community policing approaches, and aggressive goals indicate a prudently run department.

However, additional opportunities to improve exist. Specifically, response times are a crucial aspect of policing efficiency. While industry standards suggest a swift response within 3 to 15 minutes for priority 1 calls, HPD's average response time is significantly longer, about 21 minutes, and priority 2 calls average about 30 minutes. This challenge reduces HPD's ability to intervene effectively in crimes in progress. 

Notably, the increasing calls for service in areas like Hawaiian Paradise Park and Ainaloa and the management of growing homeless populations in areas like downtown Kona continue to strain the department’s resources. Despite efforts by community policing units, these escalating demands highlight the need for either more effective or additional resource allocation to address the evolving needs of these communities.

The vast geographic regions create a mismatch between in-service demand and officer availability, indicating insufficient personnel or potential over-resourcing in low-pressure areas and under-resourcing in high-demand zones.

Despite these challenges, clearance rate percentages are competitive with or outperforming national averages for the period reviewed.

While the HPD demonstrates a solid commitment to community-oriented policing and has made significant strides in certain operational areas, it faces challenges in response times and human resource allocation. Addressing these areas is crucial for the department to effectively meet the evolving needs of the Hawaiʻi County community, thereby enhancing public safety and trust in law enforcement.

Finding 1: Ongoing Evaluation of Beat Distribution Needed at HPD

Cause of the Condition: HPD struggles with extended response times, and a mismatch in service demand versus officer availability suggests imbalances in resource distribution.

Effect of the Condition: The prolonged response times hinder HPD's ability to intervene effectively in crimes, leading to missed opportunities in apprehending offenders during the critical initial stages of incidents. 

Recommendation 1: We recommend HPD conduct a comprehensive review of officer assignments to address response time, including but not limited to:

     • Continually evaluate response time strategies in the highest demand areas

     • Reassign staff in smaller low-demand beats that might be over-resourced to high-demand beats that might be under-resourced, or if no areas can be identified, add new resources to reduce disparities between areas.

  • Increase the frequency of social work ride-a-longs, explicitly appealing to individuals who heavily use department resources. This strategy aims to directly connect individuals with appropriate services, thereby reducing the operational burden on the Hawaiʻi Police Department.

Resource Utilization

Audit Activity
To verify this section, we conducted the following activities:
• Analyzed budget-to-actual figures from FRESH reports.
• Reviewed SHOPO 2021-2025 collective bargaining agreement

Salary and Wages

Regular Salary and Wages (S&W): HPD consistently over-budgets for regular wages. The actual expenditures were consistently lower than budgeted amounts.

Overtime Wages: A striking under-budgeting trend is observed in overtime wages. The overtime expenses exceeded the budget and did not meet the department’s overtime needs. HPD’s overtime expenses are primarily driven by operational readiness, not unforeseen circumstances. Collective bargaining agreements also drive categories of guaranteed overtime.

Miscellaneous Wages: As with overtime wages, HPD has a pattern of under-budgeting for miscellaneous wages. The actual expenses exceeded the budgeted figures significantly.

Other Current Expenses (OCE)
The OCE section exhibited a more aligned trend, with actual figures closely matching the budget projections, with some variances.

A detailed analysis reveals subtle shifts within the budgetary framework, which are normal and should be expected.

Equipment (EQPT)
While a smaller part of the overall budget, equipment expenses showed mixed accuracy in budgeting, with some years seeing significant underestimation and others overestimation.

Conclusion
Not all expenditures can be anticipated, and deviations may represent adapting to meet needs. Still, the audit reveals a need for HPD to refine its budgeting processes and adopt a more data-driven, flexible approach to ensure a more accurate alignment of budget allocations with actual operational needs.

Finding 2: Addressing Imbalanced Budgeting Practices at HPD

Cause of the Condition: HPD faces challenges due to consistently unfilled funded vacancies, especially in temporary officer positions. This is compounded by collective bargaining agreements that drive overtime expenses and HPD’s underestimation of operational demands. Subtle budget shifts in budget-to-actual expenses demonstrate mixed accuracy in forecasting, indicating challenges in predicting financial needs.

Effect of the Condition: The imbalanced budgeting approach leads to insufficient funds in some areas and unnecessary surpluses in others. It also undermines the department's ability to forecast and allocate resources accurately, potentially impacting the overall effectiveness.

Recommendation 2: We recommend HPD integrate a data-driven budgeting process to align fixed and variable costs with operations accurately.

Audit Activity
To verify this section, we conducted the following activities:
• Reviewed the 2022 Hawaiʻi County Charter, Section 7-2.2
• Interviewed Police Commission Chair
• Reviewed applicable Police Commission Annual Reports
• Analyzed Laserfiche materials related to the execution of duties
• Discussed Confidential Report Draft 2 with the Hawaiʻi Police Commission

The Police Commission is pivotal by serving as an essential oversight body. In a context where distrust in policing might arise from past incidents, perceived lack of transparency, or concerns about accountability, the Commission acts as a conduit for accountability and public trust. Its authority is granted in Hawaiʻi County Charter §7-2.2(c) Police Commission Power and Duties  include:

1. Adopting Rules: The Commission is responsible for creating rules necessary for its operations and overseeing the regulations of the police department.

2. Budget Review: It reviews the annual budget prepared by the Police Chief, providing recommendations to the Mayor and Managing Director.

3. Annual Reporting: An annual report is submitted to the Mayor, Managing Director, and the Council, detailing the Commission's activities and findings.

4. Public Complaints Handling: The Commission receives, investigates, and reports on public complaints against the Police Department or its members. A summary of these complaints and their outcomes is included in the annual report.

5. Advisory Role: It advises the Police Chief on matters of police-community relations.

6. Operational Review: The Commission periodically reviews police department operations to suggest improvements to the Chief and Managing Director.

7. Performance Evaluation: The performance of the Police Chief is evaluated annually, with a report submitted to the Mayor, the Managing Director, and the Council.

8. Staffing: It has the authority to hire personnel necessary to fulfill its functions.

9. Non-Interference Clause: Commission members are prohibited from interfering in the administrative affairs of the police department except for purposes of inquiry. 

What we found:
The Rules of Practice and Procedure were last revised and adopted on July 20, 2018.

The Rules of Practice and Procedure does not address:
     • How the budget review and recommendations should be conducted
     • While the Commission is tasked with receiving, considering, and investigating        charges brought by the public against the conduct of the department or its members, the document does not specify the steps or criteria to be used in these investigations.
     • What the Annual Report should include
          o The FY19 – 20’ Annual Report is missing or was never produced
          o The FY21 – 22’ Annual Report is missing or was never produced
          o The FY22 – 23’ Annual Report is missing or was never produced
     • How will the Chief's performance review process be conducted
           o The Police Commission has not evaluated, at least annually, the performance of the Police Chief, and no associated report is provided to the Mayor, Managing Director, or the Hawaiʻi County Council as required by Hawaiʻi County Charter Section 7-2.2(c)(7).

Conclusion
The Police Commission's activities require procedural enhancements. Despite its role in fostering public trust and accountability in policing, the Commission's current practices, last revised in 2018, lack detailed guidelines for key oversight functions. 

Finding 3: Procedural Gaps in Police Commission Oversight

Cause of the Condition: The Police Commission's rules and procedures, last revised in 2018, lack specific guidelines for aspects of its official oversight duties.

Effect of the Condition: Due to the absence of detailed procedures and gaps in the Police Commission's effective oversight, public trust and transparency in police operations may erode over time.

Recommendation 3a. and 3b.
3a. We recommend the Police Commission revise and regularly update rules and procedures to explicitly include guidelines for budget reviews, annual report content, the Police Chief's performance evaluation, and public complaint handling, ensuring consistent, transparent, accountable oversight and required document production.

3b. We recommend the Police Commission establish a review schedule and provide onboard training for new members to implement these procedures effectively.

Mental Health Initiatives

Audit Activity
To verify this section, we conducted the following activities:
• Gained understanding of the Department of Justice, Law Enforcement Mental Health and Wellness Act (LEMHWA)
• Analyzed General Orders (GO) relevant to the subject matter
• Interviewed HPD’s Training Division
• Interviewed the HPD Chaplain
• Reviewed materials related to the nonprofit organization “Friends of First Responders”
• Benchmarked active programs administered by other agencies
• Gained understanding of City of Bend Oregon Police Department wellness program

The United States Department of Justice (DOJ) is pivotal in guiding best practices for mental health in public safety. The DOJ implemented the Law Enforcement Mental Health and Wellness Act of 2017 (LEMHWA), recognizing the importance of mental well-being alongside physical health. This act underscores the critical need to maintain the psychological health of law enforcement officers to ensure community protection while being emotionally resilient and adaptable to stress.

Despite the recognized importance, support for officer wellness at a national level is fragmented and hindered by cultural and logistical barriers. Law enforcement officers face significant stressors. Their responsibilities involve vigilance, irregular work hours, and exposure to traumatic and confrontational situations. The added pressure of public scrutiny further intensifies these challenges.

Building on this understanding, a 2017 LEMHWA³ Report to Congress offered 22 recommendations to address these risks and improve law enforcement officers' mental health and wellness. Recommendations from the report are as follows:

1. Support creating a public service campaign around law enforcement officers' mental health and wellness in conjunction with National Mental Health Month.
2. Support the development of resources for community-based clinicians who interact with law enforcement and their families.
3. Support programs to embed mental health professionals in law enforcement agencies.
4. Support programs for law enforcement family readiness at the federal, state, and local levels.
5. Encourage departments to allow retired law enforcement officers to use departmental peer support programs post-retirement.
6. Support the development of model policies and implementation guidance for law enforcement agencies to reduce suicide.
7. Support the creation of a Law Enforcement Suicide Event Report surveillance system.
8. Support rigorous research to evaluate the efficacy of crisis lines.
9. Support the expansion of crisis lines for law enforcement staffed with counselors with a law enforcement background.
10. Consider support for a national crisis line for law enforcement.
11. Support research to determine the efficacy of mental health checks and establish best practices.
12. Consider methods for establishing remote or regional mental health check programs at the state or federal level.
13. Support the expansion of peer support programs for all officers.
14. Support expanding peer programs to include broader health and wellness, not just critical stress incidents.
15. Support alternative models to agency-specific peer programs, such as through regional collaborations or labor organizations.
16. Support training programs for peer mentors for peer support programs.
17. Include all types of agencies, including federal, when supporting peer programs for law enforcement.
18. Improve legislative privacy protections for officers seeking assistance from peer crisis lines and other peer-support programs.
19. Support identifying, developing, and delivering successful resiliency training programs for academy and periodic in-service settings.
20. Support training programs that promote the universal application of preventive interventions, including skills to manage stress.
21. Encourage departments to make support available to nonsworn employees on the same terms as their sworn colleagues.
22. Promote the development of programs that promote whole health and officer resilience.

Furthermore, the DOJ compiled a case study⁴ of 11 organizations to compare the similar and distinct initiatives implemented at the various organizations.

The 11 case studies included the following participants:

1. Bend Police Department
2. Charlotte-Mecklenburg Police Department
3. Cop2Cop
4. Dallas Police Department
5. Indianapolis Metropolitan Police Department
6. Las Vegas Metropolitan Police Department
7. Los Angeles County Sheriff’s Department
8. Milwaukee Police Department
9. Metropolitan Nashville Police Department
10. San Antonio Police Department
11. Tucson Police Department

⁴_{Law Enforcement Mental Health and Wellness Programs Eleven Case Studies.  https://portal.cops.usdoj.gov/resourcecenter/RIC/Publications/cops-p371-pub.pdf Date accessed 1-3-2024 (page 5).} 

The report included overviews, program components, challenges, and key learning lessons for program replication. Below is an extraction of the unique elements in and through the various programs.

The County of Hawaiʻi’s Mental Health Initiatives
Mental health initiatives in the HPD encompass several programs and services. Many of the mental health initiatives are addressed through the department's General Orders (GO). For example, recruitment, hiring, and screening for mental wellness from the table above are addressed in GO-531 Psychological Evaluations, which states, “It shall be the policy of the Hawaiʻi Police Department that pre-employment psychological evaluations shall be used to help determine suitability for law enforcement work.” Other GOs include Peer Counseling & Critical Incident Support Units GO-533 and Police Chaplain Services GO-419. HPD employs a robust early recognition system, as described in Section 4.7 of its procedures manual, to identify employees experiencing difficulties and employ early intervention strategies to support and avoid escalating behavior patterns. Additionally, Training Personnel GO-400 covers modules such as suicide prevention, crisis intervention, peer-to-peer support training, and others. There is a mandatory debriefing protocol for officers following critical incidents.

The County also offers a COH Employee Assistance Program (EAP), in which State of Hawaiʻi Organization of Police Officers (SHOPO) Bargaining Unit (BU) members are offered up to four free annual visits and additional visits covered by insurance with a copay. 

The Chaplain services GO-419 are a central aspect of HPD’s mental health program. 
Chaplain responsibilities are:

Police Chaplain Coordinator (Lead Chaplain) Responsibilities:
1. Report to the Police Chief the operation of the Chaplains' Program
2. Administer the Chaplains' Program
3. Collaborate with the Administrative Services Section Sergeant on administrative matters
4. Submit statistical reports on the activity of the Chaplains' Program to the Police Chief
5. Provide training to recruit classes on the role of the Police Chaplains' Program
6. Be available to perform the duties of a Police Chaplain when necessary

Police Chaplain Responsibilities:
1. Counseling
2. Hospital and Sick Calls
3. Funerals
4. Weddings
5. Invocation and Benediction
6. Public Relations
7. Reporting
8. Perform services within the County outside of the assigned jurisdiction when the Police Chief authorizes the activity.
9. Make regular visits to the police station within their jurisdiction to build relationships.

 

Bend Oregon Police Department Wellness Program

Overview:
Bend Oregon Police Department's (BOPD) Wellness Program aims to support their employees' physical and mental well-being. These initiatives include various health, fitness, and stress management activities, emphasizing voluntary participation and confidentiality. The programs collectively contribute to a healthier, more resilient workforce.
Available Programs and Resources:
     • Team and Individual Workouts
     • Yoga
     • Mindfulness
     • Mental Health LCSW
     • Peer Support/Critical Incident Response Team
     • Employee Assistance Program (EAP)
     • Chaplaincy Program
     • Johnny Law Program
     • Restorative Resting Program
     • Spouses of Bend Oregon Police Department (BOPD)
     • Mentorship Program

Wellness Activities:
• Team & Individual Workouts: Officers can substitute their breaks for a one-hour workout during shifts. This encourages teamwork and motivation, with individual workouts also available. Participation is voluntary.

• Yoga ($30,000 additional funding): Officers can replace breaks with a one-hour yoga session. It's offered four times in eight days, with professional instructors to reduce stress and improve flexibility. Participation is voluntary.

• Mindfulness: A 15-minute session at the end of day shifts, focusing on breathing and reflection to reduce stress and improve mental well-being. Participation is optional.

• LCSW ($60,000 additional funding): A Licensed Clinical Social Worker available for up to 10 hours weekly, offering support and referrals for mental health concerns, building and networking program connections, and maintaining confidentiality.

• Peer Support Group/Critical Incident Response Team: A team providing support and counseling for stress management maintaining confidentiality under Oregon Revised Statute.

• Employee Assistance Program (EAP): Offers free and confidential counseling for personal and work-related issues independent of the department.Chaplaincy Program (funding unknown): A chaplain supports officers in crisis, offering assistance with stress, trauma, and other life stressors.

• Johnny Law Program ($40,000 additional funding): An annual health screening program for first responders focusing on cardiac health, diet, sleep, injury prevention, and mental health.

• Restorative Resting Program: Allows graveyard officers to rest during breaks, with specific guidelines for readiness and location.

• Spouses of Bend PD: A program for spouses to connect, share resources, and support each other, focusing on positive communication and community.

Conclusion
Prioritizing a comprehensive wellness program requires substantial time, effort, and energy invested in researching, designing, implementing, and enhancing initiatives. The maturity of these programs demonstrates a deep commitment to the holistic well-being of both HPD personnel morale and their families. It underscores the department's dedication to fostering a supportive and resilient work environment.

Finding 4: Insufficient Internal Resources for Mental Health Initiatives at HPD

Cause of the Condition:
Historically, HPD has not prioritized the role of a mental health coordinator to identify needs and continually enhance offerings in its workforce.

Effect of the Condition:
The absence of a dedicated mental health coordinator for first responders could have significant and far-reaching consequences. Without targeted support, first responders face:
     • Heightened stress and burnout
     • Reduced effectiveness in emergencies
     • Increased absenteeism and turnover
     • Decline in morale and job satisfaction
     • Strained relationships
     • Negative public interactions
     • Escalating costs for the county

Recommendation 4:
We recommend HPD establish a dedicated role to coordinate mental health and wellness initiatives. The coordinator should develop, manage, and customize comprehensive mental health programs consistent with the LEMHWA recommendations to Congress and other established programs, prioritizing consistency and integrating these initiatives to meet the specific needs and structures of HPD. This approach should reduce dependency on any single external organization and enhance the offering of mental health support for first responders. 

Training Initiatives

Audit Activity
To verify this section, we conducted the following activities:
• Reviewed publications applicable to the adoption of Peace Officer Standards and Training (POST)
• Reviewed Law Enforcement Standards Board materials
• Reviewed HRS 139 Law Enforcement Standards and other relevant state laws
• Interviewed HPD’s Training Division
• Referenced applicable CALEA standards

In the United States, police training standards are not determined at the national level but are managed by individual states. Each state has its own (POST) board or an equivalent entity that sets the minimum training standards for law enforcement officers. In Hawaiʻi, the Law Enforcement Standards Board (“Board”) was established by Act 220, Session Laws of Hawaiʻi 2018, adding a new chapter codified as chapter 139 to HRS. As outlined in section 139-3, HRS, the board shall:

(1) Adopt rules in accordance with chapter 91 to implement this chapter;
(2) Establish minimum standards for employment as a law enforcement officer and certify persons to be qualified as law enforcement officers;
(3) Establish criteria and standards in which a person who has been denied certification, whose certification has been revoked by the board, or whose certification has lapsed may reapply for certification;
(4) Establish minimum criminal justice curriculum requirements for basic, specialized, and in-service courses and programs for schools operated by or for the State or a county for the specific purpose of training law enforcement officers; 
(5) Consult and cooperate with the counties, agencies of the State, other governmental agencies, universities, colleges, and other institutions concerning the development of law enforcement officer training schools and programs of criminal justice instruction; 
(6) Employ, subject to chapter 76, an administrator and other persons necessary to carry out its duties under this chapter;
(7) Investigate when there is reason to believe that a law enforcement officer does not meet the minimum standards for employment, and in so doing, may:
a. Subpoena persons, books, records, or documents;
b. Require answers in writing under oath to questions asked by the board and
c. Take or cause to be taken depositions as needed in investigations, hearings, and other proceedings related to the investigation;
(8) Establish and require participation in continuing education programs for law enforcement officers; 
(9) Have the authority to charge and collect fees for applications for certifications as a law enforcement officer; 
(10) Establish procedures and criteria for the revocation of certification issued by the board;
(11) Have the authority to revoke certifications and
(12) Review and recommend statewide policies and procedures relating to law enforcement, including the use of force.

The Hawaiʻi State Attorney General's Office houses the Law Enforcement Standards Board, as provided for by HRS §139-2, comprising various officials and members with relevant experience in law enforcement and public service. This board has faced criticism for not meeting deadlines and making slow progress toward establishing unified state standards for law enforcement. The American Civil Liberties Union (ACLU) has been particularly vocal, emphasizing the necessity of uniform standards for law enforcement.

Historically, throughout the state, there has been a tendency to rely on CALEA accreditation as being sufficient. Current HPD leadership has expressed an appetite for adopting POST. It's important to note that POST does not conflict with CALEA; instead, they complement each other and can facilitate adoption, as CALEA provides a common methodological framework.

Adopting POST ensures consistent training for law enforcement recruits statewide, aligning County police departments more closely with the Hawaiʻi Revised Statutes. Establishing a uniform statewide framework for training, comprehension, and enforcement of laws reduces ambiguity for law enforcement personnel and the public, enhancing clarity in adhering to legal provisions.

The HPD faces risks without adopting POST, including legal and liability concerns, which are partially mitigated when:

• Initial certification assures that officers have been trained under a uniform standardized framework.
• Maintaining certification ensures officers stay up-to-date on new technologies and techniques. It also provides predictable training patterns for scheduling and budgeting. 
• Decertification helps to ensure that agencies aren’t hiring employees with unacceptable behavior patterns. 

POST reduces liabilities by assuring that departments are prepared for current and evolving community needs and helps insulate the department and its employees.

Other concerns include limited interagency cooperation, particularly during an emergency or joint operations. Variability in training techniques and procedures can impede effective collaboration with other agencies. Additionally, the challenge of attracting and recruiting qualified applicants persists, as potential recruits may favor departments adhering to recognized standards like POST.

While law enforcement agencies in Hawaiʻi slowly move toward adopting a state standard, National Certification Training such as the International Association of Directors of Law Enforcement Standards and Training (IADLEST) are being adopted, and in some states, such as Idaho and Nevada, are becoming mandatory.

Conclusion
As law enforcement agencies across the country continue to enhance their horizontal integration at the state level and vertical integration through the adoption of national standards, any delay in Hawaiʻi's full implementation of POST will contribute to a steep learning curve and a more protracted timeline to adopt uniform practices employed by participating industry peers.

Despite these challenges, HPD does have a robust training program administered by five full-time uniform personnel. One captain, one sergeant, three police officers and up to 197 field training officers who teach specialized training modules.

HPD training initiatives
Training takes place under four circumstances:
1. Recruitment
2. Transfers 
3. Returning to Duty
4. Remedial (Recall Training)

Training Competency
Field Training Officers (FTO) and Training Coordinators learn how to administer, manage, and supervise FTO programs.

The goal of the training is to:
• Produce highly trained and positively motivated employees 
• Produce trainers capable of meeting or exceeding the standards of performance the organization requires
• Improve the agency's selection process through on-the-job observation of each new employee’s performance and their response to training
• Build skill and knowledge
• Establish a job-related appraisal system utilizing a standardized and systematic approach to the documented measurement of probationary performance.
• Provide equal and standardized training to all newly hired members and remedial training in those areas with identifiable deficiencies
• Establish a career path within the organization by providing qualified members (FTOs) 
• Ultimately, it increases the organization's overall efficiency, effectiveness, and reputation by modeling professional, competent, and ethical behavior

HPD maintains training content that is up-to-date, relevant, and compliant with certification standards through the use of its powerDMS module, a feature offered through CALEA.
Recruitment
Individuals who completed the FTO program train recruits. General Orders govern training. For recruits, timelines include:
• Six months of classroom training
o 40-hours, prosecutor’s training
 Evidence
 Prosecutorial thresholds
o 40-hours Criminal Investigation Division & Juvenile Victim’s Unit
o Specialized lessons include:
 Use of Force
 Pepper Spray
 Baton Use
 40-hours, Firearm
 Heart Savers (eight department instructors)
 Medical Field Aid Kit (MFAK) (Certified by Hilo Medical Center, four instructors)
 How to Administer Narcan (two department instructors)
 Tourniquet (Instruction provided by the Hawaiʻi Fire Department)
 Emergency Vehicle Response – (Maui “Trained-the-Trainer,” initially)
 Advanced Law Enforcement Rapid Response Training (ALERRT) is an active shooter module
 Riot Training “Field Force”
 Arrest and Control Techniques
 Correction Facility Training - Cell Extraction
 Sobriety Testing
 Annual Training – Firearm Recertification
 De-escalation Training (Three-day training)
 Mental Health for Employees, external physician teaches
• Suicide Training
• Four additional months of on-the-job training. (10 months total)
During the probationary period, which comprises the first four months of on-the-job training, the trainee’s field training officer fills out a daily evaluation worksheet. The form contains about 20 metrics on knowledge, safety, and proper use of code.
• The trainees rotate officer pairings monthly to incorporate diverse perspectives
• Trainees struggling are put on Performance Improvement Programs.

 

Transfers
Transfers receive abbreviated training, lasting two to six months, and contains the same criteria as the recruit training.

Returning to Duty
Return-to-duty employees receive a two month refresher training that focuses heavily on recent changes in law and software to refamiliarize officers with changes that may have occurred during their absence. 

Recall Training
Historically, remedial training with seasoned officers has not been prioritized. Beyond basics such as annual firearms recertification, many seasoned officers have not been targeted for training in new and emerging techniques. Recently, HPD has begun retraining initiatives. Its first class commenced on November 24, 2023. The class consists of 20 officers at a time and is conducted monthly for four days each month. Upon completion, all sworn staff will be apprised of the latest law enforcement modules. The training division’s goal is to ensure all sworn staff receive the latest information in a devoted classroom setting at least every five years.

Conclusion
We compared the training department ratios between the BOPD and HPD. In BOPD, there are 4.5 full-time equivalent (FTE) staff members and additional contractors specifically assigned to advance training initiatives. In contrast, HPD has one Sergeant, one Captain, and three Police Officers responsible for overseeing training activities for a workforce nearly twice the size of BOPD. To fill the gap, HPD utilizes a diverse pool of approximately 197 department instructors covering a wide array of topics, including Firearms, Use of Force, and CPR/First Aid. HPD is committed to providing comprehensive training. HPD estimates these instructors, dispersed across various departmental units, provide approximately 3,291 hours of training annually to department personnel. 

While this practice is noteworthy, frequently borrowing field personnel to supplement gaps in the full-time training staff burdens operations and maintaining full staffing. The necessity to borrow personnel frequently indicates a need to analyze the underlying reasons for this requirement.

HPD’s recall training ambitions put additional pressure on its callbacks, holdovers, and working on days off, likely contributing to additional overtime. HPD has no devoted training facility, as illustrated in the photographs above. 

Training and drills are conducted at the grace of various facilities willing to accommodate the department's requests. This is a challenge for both police and fire services, as they cannot practice practical life-saving drills routinely.

Finding 5: Enhancing Officer Training and Standards for HPD

Cause of the Condition 
The core challenge faced by the division stems from Hawaiʻi’s absence of uniform training standards. Additionally, the division's training program is severely hindered by a small management team, limited resources, a lack of dedicated facilities, and a limited budget.

Effect of the Condition 
HPD faces increased public scrutiny until the state adopts standardized training. Its small management team limits effective coordination, increasing the likelihood of operational failure. Scarce resources, no dedicated training facilities, and a constrained budget limit officers' exposure to critical scenarios. This lack of preparedness puts officers and the public at risk in life-threatening situations without prior simulation or contingency planning.

Recommendation 5a. and 5b.
5a. We recommend HPD prioritize the adoption of POST standards promoting standardized law enforcement practices statewide, including flexibility for department-specific adaptations acknowledging unique operational needs.

5b. We recommend HPD evaluate the staffing model within its training division. This assessment is an examination of the trainer-to-officer ratio to ensure that it can effectively manage the current training and seamlessly incorporate new and pertinent activities to support HPD’s long-term objectives.

Lastly, HPD should consider exploring collaboration opportunities with the Hawaiʻi County Fire Department and other agencies to formulate a long-term strategy for securing a dedicated training facility. This collaborative effort should focus on resource pooling, shared usage, and potential funding avenues to establish a specialized training center.

As a practice, we remain mindful and document instances of fraud, waste, and abuse within the scope of the audit objective and not departmentwide or countywide.

Management did not report actual fraud, waste, abuse, although they acknowledged ongoing investigations and pending litigation.

What is the definition of Abuse?
“Abuse” involves deficient or improper behavior compared to behavior that a prudent person would consider reasonable and necessary operational practice given the facts and circumstances. This includes the misuse of authority or position for personal gain or the benefit of another. Abuse does not necessarily involve fraud or illegal acts.

During the audit, we became aware of disciplinary reports taken against multiple current and former employees, as reported through press releases and departmental disciplinary reports⁶. These actions may be considered abusive behavior when the allegations are confirmed to be accurate. 

We commend the County’s efforts to provide avenues for the public to lodge complaints with the Police Commission and to hold employees accountable when breakdowns occur. The department needs to remain vigilant and continue nurturing a culture that condemns behaviors detrimental to the public interest and the reputation of both the department and law enforcement, including actions that may constitute abuse.

⁶_{Annual Misconduct Report. 4* https://www.hawaiipolice.com/about-us/annual-misconduct-report Date accessed 2-14-2024.}

Conclusion

To improve government accountability and ensure audit recommendations are implemented or resolved, we will continuously monitor the status of pending recommendations using our remediation tracker. To view the status, visit us at: https://www.Hawaiʻicounty.gov/our-county/legislative/office-of-the-county-auditor

In closing, the improper use of government resources or positions is often discovered thanks to employees and the public, and we encourage you to report concerns through our fraud and whistleblower hotlines:

Fraud and waste hotline: (808) 480-8213
Whistleblower hotline: (808) 480-8279
Email: concern@Hawaiʻicounty.gov
Fax: (808) 961-8905
Mail: Office of the County Auditor, 120 Pauahi St., Hilo, HI 96720

To access the complaints directory:
https://www.Hawaiʻicounty.gov/our-county/legislative/office-of-the-county-auditor/inquiry-and-complaint

Submit a claim: 
https://www.Hawaiʻicounty.gov/our-county/legislative/office-of-the-county-auditor/inquiry-and-complaint/intake-form

 

Attachment 1: Auditor Notes
Notes about the data in general
We relied on management’s representations about information provided and, whenever possible, sought corroboration from other sources and evaluated against our knowledge of operations. We requested supporting documentation and, if available, reviewed this information for reasonableness. Therefore, our reviews are not intended to provide assurance that information provided by management is free from error.

Table 3: Call for service data, provided by HPD compiled by OCA

Officer-initiated calls are excluded from response time analysis as officers were presumably on the scene when the call was initiated. **Waikoloa Village had an unusual average in 2022 that spiked the total and generally has response time averages between 26:26 to 29:47 for priority 1 calls. Other distinct times that HPD may consider when calculating response time includes “Dispatched” and “First Enroute Route” times.

Table 4: Comparison of Crime Clearances (AG) to UCR (FBI) National Averages, complied OCA

* Index Crimes - Murder, rape, robbery, aggravated assault, burglary, larceny-theft, motor vehicle theft, and arson. However, due to a different method of counting, arson and human trafficking offenses are not included in the totals of reported Index Crimes and Index & Part II Offenses.

** Violent Crimes - Murder, rape, robbery, and aggravated assault. Human trafficking - commercial sex acts and human trafficking - involuntary servitude are also violent crimes; however, due to a different method of counting, they are not included in the totals of violent crimes, Index Crimes, and total Index & Part II Offenses. 

***Encompasses two definitions - Rape (legacy)* - The carnal knowledge of a female forcibly and against her will. Assaults or attempts to commit rape by force or threat of force are included. Rape (revised)* - Penetration, no matter how slight, of the vagina or anus with any body part or object, or oral penetration by a sex organ of another person, without the consent of the victim.